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my tank is about 40liters on highway i can run 400+km, but on town ways only about 200kms

Hello I am driving Polo 1380cc, MA2005, i wounder for its fuel consuption as it consumes almost 5.5kms/l on towm roads but 11kms/l on highway. please any help what could be wrong or is it its normal consuption?
Thank you.